Tenant Participation in the Netherlands: The Role of Laws, Covenants and (Power) Positions

Abstract

This paper looks at what is pursued and achieved by formalised tenant participation in the Netherlands, and at the main factors influencing the participation process and outcome. An evaluative examination of a participation agreement, drawn up by a Rotterdam housing association and its tenants, and the implementation of this agreement illustrates the field of friction between what is written and what is done. The paper argues that the notion of power as embedded in structuration theory is important to the understanding of the process and outcome of tenant participation. The case study shows that it is difficult to fulfil the high ambition of co-operating in equality when positions are structurally different, even when the actors have formally agreed to do so. In crucial issues, the actors' own motives prevail and the distribution of power is decisive. In the studied case, tenants' successes were achieved only on less controversial issues. Nevertheless, formalised participation provides an added value to the outcome for all actors, including the weaker ones. Having to talk to each other about policy and carrying out the procedures in itself offer an important learning process valuable to both. Furthermore, the cyclic nature of formalised tenant participation offers recursive opportunities to influence the decision-making culture, which can gradually lead to rewarding improvements in both the process and the outcome.